The Fund for Animals and individuals dedicated to protecting animals brought an action against Bureau of Land Management (BLM) challenging its implementation of its restoration strategy for wild horses and burros on public lands. The approved budget request made by the BLM, which contained outlines of the reinvigorated wild horses and burros program and set broad goals and strategies, was not an “agency action” subject to review. Finally, plaintiffs request for a permanent injunction, to prevent BLM from carrying out specified removal actions, was moot because the “gathers” have already occurred and what happens in the future is based on unknown variables.